Books by Gary Graybill

Sunday, September 25, 2011

14 Months of Danger for US Foreign Policy

America is moving into a bitterly partisan presidential election cycle. This cycle always makes international relationships a little uneasy while the voters decide on which candidate will be elected to shape on-going policies. This time the situation is especially turbulent.

The United States remains the most powerful and influential player on the international stage. The sheer size of our economy (regardless of the current growth rate) and the power of our military make the United States unique. Even more important, no single leader of the world is as significant, for good or bad, as the American President. That makes the presidency, in its broadest sense, a matter that cannot be ignored.

Our electoral system was designed to be a phased process. By separating the selection of the legislature from the selection of the president, the founding fathers created a system that did not allow for sudden shifts in personnel. Unlike parliamentary systems, in which the legislature and the leadership are intimately linked, the institutional and temporal uncoupling of the system in the United States was intended to control the passing passions by leaving about two-thirds of the U.S. Senate unchanged even in a presidential election year, which was supposed to coincide with the election of the House of Representatives. The United States has a vast government that rests on a system in which significant change is not impossible but which demands a level of agreement and compromise over a period of time that rarely exists.

This is particularly true in domestic politics, where the complexity is compounded by the uncertainty of the legislative branch. Consider that the healthcare legislation passed through major compromise is still in doubt, pending court rulings that thus far have been contradictory. All of this would have delighted the founders if not the constantly trapped presidents, who frequently shrug off their limits in the domestic arena in favor of action in the international realm, where their freedom to maneuver is much greater, as the founders intended.

The point is that all of our presidents live within the same framework in which Barack Obama is now operating. First, no president begins with a clean slate. All begin with the unfinished work of the prior administration. Thus, George W. Bush began his presidency with an al Qaeda whose planning and implementation for 9/11 was already well under way. Some of the al Qaeda operatives who would die in the attack on 9/11 were already in the country. So, like all of his predecessors, Obama assumed the presidency with a good portion his foreign policy agenda already laid out.

Obama had a unique set of problems. The first was his agenda, which focused on ending the Iraq war and reversing social policies in place since Ronald Reagan became president in 1981. By the time Obama entered office, the process of withdrawal from Iraq was under way, which gave him the option of shifting the terminal date. The historic reversal that he wanted to execute, starting with healthcare reform, confronted the realities of September 2008 and our financial crisis. His Iraq policy was in place by Inauguration Day while his social programs were colliding with the financial crisis.

Obama’s campaign was about more than particular policies. He ran on a platform that famously promised ‘hope and change’. His tremendous political achievement was in framing those concepts in such a way that they were interpreted by voters to mean precisely what they wanted them to mean without committing Obama to specific policies. To the anti-war faction it meant that the wars would end. To those concerned about unilateralism it meant that unilateralism would be replaced by multilateralism. To those worried about growing inequality it meant that he would end inequality. To those concerned about jobs going overseas it meant that jobs would stay in the United States. To those who hated Guantanamo it meant that Guantanamo would be closed.

Obama created a coalition whose expectations of what Obama would do were shaped by them and projected on Obama. In fact, Obama never quite said what his supporters thought he said. His supporters thought they heard that he was anti-war. He never said that. He simply said that he opposed Iraq and thought Afghanistan should be waged. His strategy was to allow his followers to believe what they wanted so long as they voted for him, and they obliged. Now, this is not unique to Obama. It is how presidents get elected. What was unique was how well he did it -and the problems it caused once he became president.

It must first be remembered that, contrary to the excitement of the time and faulty memories today, Obama did not win an overwhelming victory. About 47 percent of the public voted for someone other than Obama. It was certainly a solid victory, but it was neither a landslide nor a mandate for his programs. But the excitement generated by his victory created the sense of victory that his numbers didn’t support.

Another problem was that he had no programmatic preparation for the reality he faced. September 2008 changed everything in the sense that it created financial and economic realities that ran counter to the policies he envisioned. He shaped those policies during the primaries and after the convention, and they were based on assumptions that were no longer true after September 2008. Indeed, it could be argued that he was elected because of September 2008. Prior to the meltdown, John McCain had a small lead over Obama, who took over the lead only after the meltdown. Given that the crisis emerged on the Republicans’ watch, this made perfect sense. But shifting policy priorities was hard because of political commitments and inertia and perhaps because the extremities of the crisis were not fully appreciated.

Obama’s economic policies did not actually differ that much from Bush’s. The Bush administration’s solution was to print and insert money into financial institutions in order to stabilize the system. By the time Obama came into power, it was clear to his team that the amount of inserted money was insufficient and had to be increased. In addition, in order to sustain the economy, the policy that had been in place during the Bush years of maintaining low interest rates through monetary easing was extended and intensified. To a great extent, the Obama years have been the Bush years extended to their logical conclusion. Whether Bush would have gone for the stimulus package is not clear, but it is very possible that he would have.

Obama essentially pursued the Bush strategy of stabilizing the banks in the belief that a stable banking system was indispensable and would in itself stimulate the economy by creating liquidity. Whether it did or it didn’t, the strategy created the beginnings of Obama’s political problem. He drew substantial support from populists on the left and suspicion from populists on the right. The latter, already hostile to Bush’s policies, coalesced into the Tea Party. But this was not Obama’s biggest problem. It was that his policies, which both seemed to favor the financial elite and were at odds with what Democratic populists believed the president stood for, weakened his support from the left. The division between what he actually said and what his supporters thought they heard him say began to widen. While the healthcare battle solidified his opposition among those who would oppose him anyway, his continuing response to the financial crisis both solidified opposition among Republicans and weakened support among Democrats.

It is with this background we see his foreign policy problem. Among Democrats, the anti-war faction was a significant bloc. Most Democrats did not support Obama with anti-war reasons as their primary motivator, but enough did make this the priority issue that he could not win if he lost this bloc. This bloc believed two things. The first was that the war in Iraq was unjustified and harmful and the second was that it emerged from an administration that was singularly insensitive to the world at large and to the European alliance in particular. They supported Obama because they assumed not only that he would end wars but that he would also re-found American foreign policy on new principles.

Obama’s decision to dramatically increase forces in Afghanistan while merely modifying the Bush administration’s timeline for withdrawing from Iraq caused unease within the Democratic Party. But two steps that Bush took held his position. First, one of the first things Obama did after he became president was to reach out to the Europeans. It was expected that this would increase European support for U.S. foreign policy. The Europeans, of course, were enthusiastic about Obama, as the Noble Peace Prize showed. But while Obama believed that his willingness to listen to the Europeans meant they would be forthcoming with help, the Europeans believed that Obama would understand them better and not ask for help.

The relationship was no better under Obama than under Bush. It wasn’t personality or ideology that mattered. It was simply that Germany, as the prime example, had different interests than the United States. This was compounded by the differing views and approaches to the global financial crisis. Whereas the Americans were still interested in Afghanistan, the Europeans considered Afghanistan a much lower priority than the financial crisis. Thus, U.S.-European relations remained frozen.

Then Obama made his speech to the Islamic world in Cairo, where his supporters heard him trying to make amends for Bush’s actions and where many Muslims heard an unwillingness to break with Israel or end the wars. His supporters heard conciliation, the Islamic world heard inflexibility.

The European response to Obama the president as opposed to Obama the candidate running against George Bush slowly reverberated among his supporters. Not only had he failed to end the wars, he doubled down and surged forces into Afghanistan. And the continued hostility toward the United States from the Islamic world reverberated among those on the Democratic left who were concerned with such matters. Add to that the failure to close Guantanamo and a range of other issues concerning the war on terror and support for Obama eroded.

Obama’s support now stands at 41 percent. The failure point for a president’s second term lurks around 35 percent. It is hard to come back from there. Obama is not there yet. The loss of another six points would come from his Democratic base. At this point, however, the president is far less interested in foreign policy than he is in holding his base together and retaking the middle. He did not win by a large enough margin to be able to lose any of his core constituencies. He may hope that his Republican challenger will alienate the center, but he can’t count on that. He has to capture his center and hold his left.

That means he must first focus on domestic policy. That is where the public is focused. Even the Afghan war and the U.S. withdrawal from Iraq are not touching nerves in the center. His problem is twofold. First, it is not clear that he can get anything past Congress. He can then argue that this is Congress’ fault, but the Republicans can run against Congress as well. Second, it is not clear what he would propose. The Democratic core wants taxes. The center doesn’t oppose taxes (it is merely uneasy about them), but it is extremely sensitive about having the taxes eaten up by new spending — something the Democratic left supports. Obama is trapped between two groups he must have that view the world differently enough that bridging the gap may be impossible.

The founders gave the United States a government that, no matter how large it gets, can’t act on domestic policy without a powerful consensus. Today there is none, and therefore there can’t be action. Foreign policy isn’t currently resonating with the American public, so any daring initiatives in that arena will likely fail to achieve the desired domestic political end. Obama has to hold together a coalition that is inherently fragmented by many different understandings of what his presidency is about. This coalition has weakened substantially. Obama’s attention must be on holding it together. He cannot resurrect the foreign policy part of it at this point. He must bet on the fact that the coalition has nowhere else to go. What he must focus on is domestic policy crafted to hold his base and center together long enough to win the election.

All this brings me to the real subject. The world, because of all this, is facing at least 14 months with the United States being at best reactive and at worse non-responsive to events. Between now and the election, the political configuration of the United States and the dynamics of his presidency will force him away from foreign policy.

This at a time when the Persian Gulf is coming to terms with the U.S. withdrawal from Iraq and the power of Iran, when Palestinians and Israelis are facing another crisis over U.N. recognition, when the future of Europe is unknown, when North Africa is unstable and Syria is in crisis and when U.S. forces continue to fight in Afghanistan. All of this creates opportunities for countries to build realities that may not be in the best interests of the United States in the long run. There is a period of at least 14 months for regional powers to act with confidence without being too concerned about the United States.

The world knows this, of course. The question is whether and how they take advantage of it.